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From: Paul Wolf
Newsgroups: soc.culture.colombia,alt.politics.org.cia,alt.politics.org.fbi,soc.culture.c
Subject: FINAL ACT of BOGOTA
Date: Mon, 07 Oct 2002 22:15:02 -0400
Organization: Posted via Supernews, http://www.supernews.com
POLICY OF THE UNITED STATES REGARDING ANTI-COMMUNIST MEASURES
WITHIN THE INTER-AMERICAN SYSTEM
810.0013/6-2148
The Secretary of State to Diplomatic Representatives in the
American Republics
SECRET WASHINGTON, June 21, 1948.
The Secretary of State, transmits herewith for the information
and guidance. of the Officers in Charge a copy of Policy
Planning Staff paper no. 26, dated March 22, 1948 entitled: "To
establish U.S. policy regarding anti-Communist measures which
could be planned and carried out within the Inter-American
System." The Secretary of State approves the conclusions and
recommendations in this paper.
There is likewise enclosed for convenient reference a copy of
the resolution approved at the Ninth International Conference
of American States at Bogota on the same subject.
[Enclosure No. 1]
FINAL ACT of BOGOTA
RESOLUTION XXXII
THE PRESERVATION AND DEFENSE OF DEMOCRACY IN AMERICA
WHEREAS:
In order to safeguard peace and maintain mutual respect among
states, the present situation of the world demands that urgent
measures be taken to proscribe tactics of totalitarian
domination that are inconsistent with the tradition of the
countries of America, and prevent agents at the service of
international communism or of any totalitarian doctrine from
seeking to distort the true and the free will of the peoples
of this continent;
THE REPUBLICS REPRESENTED AT THE NINTH INTERNATIONAL CONFERENCE
OF AMERICAN STATES
DECLARE
That by its anti-democratic nature and its interventionist
tendency, the political activity of international communism or
any totalitarian doctrine is incompatible with the concept of
American freedom, which rests upon two undeniable postulates:
the dignity of man as an individual and the sovereignty of the
nation as a state;
REITERATE
The faith that the peoples of the New World have placed in the
ideal and in the reality of democracy, under the protection of
which they shall achieve social justice, by offering to all
increasingly broader opportunities to enjoy the spiritual and
material benefits that are the guarantee of civilization and
the heritage of humanity;
CONDEMN
In the name of the Law of Nations, interference by any foreign
power, or by any political organization serving the interests
of a foreign power, in the public life of the nations of the
American continent,
AND RESOLVE:
1. To reaffirm their decision to maintain and further an
effective social and economic policy for the purpose of
raising the standard of living of their peoples; and their
conviction that only under a system founded upon a guarantee
of the essential freedoms and rights of the individual is it
possible to attain this goal.
2. To condemn the methods of every system tending to suppress
political and civil rights and liberties, and in particular
the action of international communism or any totalitarian
doctrine.
3. To adopt, within their respective territories and in
accordance with the constitutional provisions of each state,
the measures necessary to eradicate and prevent activities
directed, assisted, or instigated by foreign governments,
organizations, or individuals, that tend to overthrow their
institutions by violence, to foment disorder in their
domestic political life, or to disturb, by means of pressure,
subversive propaganda, threats or by any other means, the
free and sovereign right of their peoples to govern
themselves in accordance with their democratic aspirations.
4. To proceed with a full exchange of information concerning
any of the aforementioned activities that are carried on
within their respective jurisdictions.
[Enclosure No. 2]
Paper Prepared by the Policy Planning Staff
SECRET [WASHINGTON,] March 22, 1948.
PPS-26
Problem: To Establish U.S. Policy Regarding Anti-Communist
Measures Which Could Be Planned and Carried Out Within the
Inter-American System
Analysis:
1. The question of Communism will be considered at the
Ninth International Conference of American States which
will meet at Bogota On March 30, 1948. Proposals similar
to ResoIution VI adopted at the second meeting of the
Ministers of Foreign Affairs of the American Republics at
Havana, Cuba, July 1940, probably will be made. The Havana
Resolution provides that: one of the Governments of the
American Republics shall adopt within its territory all
necessary measures in accordance with its constitutional
powers to prevent and suppress any activities directed,
assisted, or abetted by foreign governments, or foreign
groups or individuals, which tend to subvert the domestic
institutions, or to foment disorder in their internal
political life, or. to modify by pressure, propaganda,
threats, or in any other manner, the free and sovereign
right of their peoples to be governed by their existing
domestic systeiyis." This resolution also provides that
the respective governments agree that they will immediately
consult together, if the state directly interested wishes
to request it, in the event that the peace of any of
Republics is menaced by such activities.
2. In calling attention to these facts the Bogota Review
Group in the Department expressed concern that some of
the measures proposed at the Bogota Conference by other
American Republics might be so drastic in nature that
they would, if accepted by the United States, increase
international tension, give dictatorial government's in
other countries a means of attacking all opposition, and
might even infringe constitutional liberties in the
United States.
3. The subject of anti-Communist agreements among the
American Republics was raised with the Department by the
Argentine Government during August 1947. The Argentine
Foreign Minister emphasized the desirability of anti-
Communist agreements to which the United States would be
a party, but then inconsistently observed: "Argentina
does feel, however, that the United States should change
in some ways its extreme opposed position vis-a-vis
Russia". Nothing came of the Argentine suggestion
regarding anti-Communist agreements; but the Argentine
Government probably will pursue the question further at
the Bogota Conference.
4. During the latter part of 1947, the Dominican
Government suggested to the Haitian Government the
negotiation of an anti-Communist agreement. The Haitian
Government replied that the other American Republics
should be included in such important agreements, and
that the Dominican Government might wish to take the
initiative regarding multilateral agreements among the
American Republics. The Dominican Government followed
the Haitian suggestion, but its proposal met with
slight response from the other American Governments. The
Department sent the following telegraphic instruction to
American diplomatic officers in the other American
Republics under date of December 17, 1947:
In the event you should be consulted with respect
to the views of this Government concerning possible
multilateral inter-American action, for defense against
Communist penetration -- as a result of such initiatives
as the recent suggestion made by the Dominican Government
to the Haitian Government -- you may indicate, that the
United States Government believes that this problem, the
seriousness of which is recognized, can best be dealt
with at present by each country in accordance with the
varied situations front country to country. The United
States Government recognizes, of course, that as
circumstances may change in this respect there may
eventually be occasion for modifying this view.
The accelerated activities of international Communism
indicate that the time may have come, as foreseen in
the last sentence of the December 17 instruction, for a
careful and thorough review of the position of the United
States Government regarding means to combat Communism.
5. The consensus of several officers of the Department
who were consulted during the preparation of this paper
is that Communism in the Americas is a potential danger,
but that, with a few possible exceptions, it is not
seriously dangerous at the present time.
According to OIR Report, No. 4367 of September 16, 1947,
entitled "Communist strength in the other American
Republics", the "best figures" estimate of Communist
Party membership in the twenty Latin American countries
is approximately 300,000. This would be about one-quarter
of one percent of the population of those countries.
It should be pointed out, however, that these assessments
of Communist capabilities may require revision if Communist
domination spreads further in Europe, particularly to Italy
and France. There are large colonies of Italian immigrants
in several of the American Republics in which the
Communists may succeed in gaining increased influence,
which might constitute an important accretion to Communist
strength. The influence of French culture and ideas always
has been strong in the American Republics, and every effort
would be madethrough a Communist-dominated France to full
use of this advantage.
6. A draft paper regarding U.S. policy toward the other
American Republics was prepared in the Department during
the latter part of 1946. The following points made in this
policy paper have a bearing on the problem of Communism:
(a) A common belief in Republican institutions has been,
and must continue to be, one of the fundamental bases of
inter-American solidarity;
(b) It is the policy of the United States to support in
every proper way the forces which make for progress
toward representative government based on constitutional
procedures and respect for civil liberties and human
rights;
(c) Two new forces threatening democracy have, during and
since the war, made their appearance in Latin America: a
brand of Fascism deriving in part from Nazi ideology, and,
second, Communism;
(d) The Government of the United States considered it
undesirable at that time to initiate any general attack
against local Communist movements or their sources of
inspiration, but recognized that it might be compelled
to act in the event that Communist activities should
appear to be endangering inter-American solidarity or
security;
(e) The policy of the United States was to stand upon the
inter-American principle of non-intervention, but without
derogation from the right of the community of States to
concern itself with any matter bearing upon its peace and
welfare -- a right which is inherent in the inter-American
principle of consultation and in the Charter of the United
Nations.
7. Several conditions which play into the hands of the
Communists exist in many of the American Republics. There is
poverty that is so widespread that it means a bare subsistence
level for large masses of people. There are ignorance and a
high degree of illiteracy. There are strong reactionary
forces which, through extreme selfishness and lack of any
sense of social responsibility, impose a minority will
through military or other dictatorial governments and so
alienate large segments of their populations which otherwise
probably would be anti-Communist. Taking advantage of these
conditions to acquire power which will serve Communist ends,
the most effective and well organized force at the disposal
of the Communists in certain countries is the CTAL,
(Confederacion de Trabajadores de America Latina), led by
the Mexican crypto-Communist, Vicente Lombardo Toledano. The
principal strength of the CTAL is in Mexico, Colombia, Cuba,
Chile, Ecuador, Uruguay and Costa Rica.
8. There also are strong anti-Communist forces at work in
Latin America. The Catholic Church, the armed forces, and
the large land owners naturally provide strong opposition to
Communism. These three elements frequently work together and
dominate governments. Unfortunately, they sometimes come
close to the extreme of reaction which is very similar to
Communism as concerns totalitarian police state methods.
More hopeful developments in the effort to combat Communism
depend in part upon rapid growth of middle classes, plans
for the more effective organization of anti-Communist, labor,
and more effective action by liberal and Socialist elements
which, while frequently of the left, are anti-Communist in
ideology and in method. The inter-American Confederation of
Labor, with the active support of the A.F. of L., is a new
and promising force which is challenging the position of the
CTAL and has already made important progress, particularly
in Chile.
9. Ample precedent for common measures to combat Communism
in the Americas exists in the programs and activities carried
out during the last World War. Many resolutions adopted in
inter-American conferences express the determination to
oppose totalitarian and subversive activities which seek to
destroy the democratic system of the American Republics.
Specific action was taken through the work of the Emergency
Advisory Committee for Political Defense with headquarters
at Montevideo; through the exchange of information among the
American Governments; through programs of police cooperation;
and through a coordination of effort in the control of travel,
communications, and the issuance of passports and visas.
Any program of cooperation among the American Republics to
combat Communism will require some means of coordination
among the American Republics, and arrangements within the
Department of State to provide a responsible center for
coordination of action to be taken by several departments
and agencies of our Government which will be concerned with
the problem.
10. It is stated in the comment by the Bogota Review Group
that there are dangers for the United States inherent in
possible bilateral or multilateral anti-Communist agreements
among the American Republics. There is a probability that,
due to uneven progress toward democracy in the other American
Republics, there would be many cases in which such anti-
Communist agreements would be directed against all political
opposition, Communist or otherwise, by dictatorial
governments, with the inevitable result of driving leftist
elements into the hands of the Communist organization.
Conclusions:
11. The policy of the United States regarding common measures
to combat Communism, which could be planned and carried out
within the inter-American System, should be governed by the
following considerations:
(a) International Communism at the present time must be
regarded as the tool of the Kremlin, which the latter
utilizes to advance Russian imperialistic designs and to
supplant democracy throughout the world with a totalitarian
police state system that suppresses human rights and civil
liberties;
(b) International Communism, consequently, is a direct and
major threat to the national security of the United States,
and to that of all of the other American Republics;
(c) This threat, at the present time, is a potential rather
than an immediately serious one in Latin America generally,
but preventive measures should be taken to minimize it
before it becomes more dangerous.
(d) The national security of the United States should be the
determining factor in establishing our position regarding
common inter-American measures to combat Communism. There
are strong and extreme reactionary forces and governments
in Latin America which, through selfishness and lack of any
sense of social responsibility, impose a minority will
through military or other dictatorial governments and so
alienate large segments of their populations which otherwise
probably would be anti-Communist. These reactionary forces
often adopt a strong anti-Communist line, but frequently apply
repressive measures to all political opponents, alleging
that the latter are Communists whether or not that is the
fact. These reactionary forces also work with Communists
against Liberal and Socialist elements for reasons of pure
political opportunism. Consequently, cooperation of the
United States with these reactionary elements, even in anti-
Communist measures, should be very carefully considered in
the light of our long-range national interests.
(e) It is extremely important, always with our own
national security in mind, to concentrate upon the defeat
of international Communism. As a corollary, it is essential
to follow policies and to adopt measures calculated not only
to command the very valuable support of labor, liberal and
Socialist elements, but also to pursuade sufferers from
reactionary forces in the American Republics that the United
States is a better and more promising hope than Communism or
the Soviet Union.
12. The United States should not enter into anti-Communist
agreements with the other American Republics, and should
oppose a multilateral inter-American anti-Communist agreement,
until further study has been given to the problem.
However, the Delegation of the United States should propose
an anti-Communist resolution. The resolution should refer to
recent developments in some countries outside of the Americas
which illustrate the aggressive action of Communist
minorities. It should refer to inter-American resolutions
condemning totalitarianism. The United States resolution
should express strong condemnation of international Communism
as an example of the totalitarian police state system that
suppresses all human rights and civil liberties. The
resolution also should state in positive terms the support
of the subscribing governments for human rights and civil
liberties and for social and economic policies designed to
raise the standard of living of the peoples and accord
economic security.
13. An immediate study should be made by ARA, EUR, and S/P
to determine if the national interests would be served by
resolute leadership on the part of the United States in an
effort to have all Communist parties in the Western
Hemisphere declared illegal by the various governments, and
to eliminate Communist influence and activity as far as
possible.
14. The Department of State should:
(a) encourage exchange of views and information among the
American Republics regarding Communist activities and
means to combat them;
(b) explore the possibility of utilizing the consultative
meetings of Ministers of Foreign Affairs of the American
Republics as the Inter-American body to coordinate policy
in this matter;
(c) arrange for the coordination of the activities of
departments and agencies of our government which would
participate in a program to combat Communist activities;
and
(d) give information and guidance to American Ambassadors
to the other American Republics regarding international
Communism and the means to combat it.
15. The movement for the organization of non-Communist
labor, including Catholic labor -unions, in the other
American Republics should be encouraged. In particular,
support should be given by every practicable means to the
Inter-American Confederation of Labor.
Well qualified Labor Attaches should be assigned to our
Embassies in key countries among the American Republics
where Communist activities are an important problem or
where labor organization is a significant factor. The
importance of appointing well-qualified individuals is
emphasized. An effort must be made to include selected
members of labor organizations.
16. After consultation with the Federal Bureau of
Investigation, the Central Intelligence Agency and other
interested departments and agencies, the Department of
State should work out a plan for police cooperation in
the Americas to combat Communist activities, including
the possible training in the United States of police
officials from the other American Republics.
17. The Department of State should take whatever action
may be possible to refuse passports to known Communists
who are citizens of the United States, and who wish to
go to any of the other American Republics. (It is
understood that this matter now is before the Under
Secretary for consideration.)
18. ARA, in cooperation with other interested offices,
should continue to give urgent attention to specific
plans for assisting in the economic development of the
other American Republics. Such plans should be
consistent with other obligations of the United States
and should be subject to higher priorities in other
parts of the world; and should be based on the
principle of helping the other American Republics to
help themselves.
Since effective economic and social cooperation is a
major weapon to combat Communist influence, cooperative
inter-American programs such as those relating to
public health and sanitation, agriculture, food
production, etc. should be continued.
19. The Department of State should continue to utilize
and to improve those activities in its Information and
Cultural Program in Latin America that would help to
combat Communism. The recommendations contained in the
statement of "U.S. information policy with regard to
anti-American propaganda", dated December 1, 1947,
should be carried out vigorously and fully.
American libraries and cooperative cultural institutes
should not become involved in internal political affairs
in the other American Republics. Their influence will be
anti-Communist if they carry out their normal functions
efficiently. Radio, press, and, motion picture programs
should be reviewed to determine their effectiveness as
measures to combat Communism.
20. A systematic and continuous effort should be made
to inform United States business interests operating in
the American Republics and, where possible, United
States citizens residing or there, about the problems
and objectives of United States policy in combatting
Communism in those countries, with a view to enlisting
their cooperation.
810-00B/10-1548
The Acting Secretary of State to Diplomatic Representatives
in the American Republics
TOP SECRET WASHINGTON October 15, 1948.
Sirs: At the Bogota Conference in April of this year there
was approved unanimously an anti-Communist resolution providing
among other things that the American Republics will exchange
information among themselves to assist in checking subversive
Communist activities. This proposed exchange of information may
properly be considered a commitment on the part of the United
States as well as the other American Republics, and it is
appropriate therefore that the United States should implement
this resolution in cooperation with the Governments of the
other American Republics.
You are instructed therefore, to discuss this matter with the
ForeignMinister and any other appropriate authorities of the
country to which you are accredited and to arrange for the
establisliment of a suitable liaison and procedure by which
information of the type mentioned in the Bogota Resolution may
be exchanged. Liaison with some countries may be directly with
the Foreign Office, while in other instances more suitable
regular arrangements for the interchange may be established
with another ministry or with the police. In all cases the
liaison, particularly the designation of specific officials of
both the Embassy and the other government, should be arranged
personally by the Chief of Mission directly with the
appropriate high official or officials of the other government.
For the information of the mission, the Department recognizes
that arrangements for exchange of information under the Bogota
Anti-Communist Resolution may be modified as experience is
gained. The nature, quantity and quality of the information
which will be exchanged will vary with each country and may
well develop only after a period of trial.
The recommendations and comments of the missions are requested
on this matter, as well as a report specifically on (a) the
arrangements that have been negotiated with the Foreign
Office, and (b) the arrangements effected within the mission
and the name of the officer designated for liaison duty.
Very truly yours, For the Acting Secretary of State:
W. PARK ARMSTRONG, Jr.
Special Assistant for Research and Intelligence
[Foreign Relations of the United States, footnotes omitted]